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Recreation Uses on the 
National Forests 



By 

FRANK A. WAUGH 

Collaborator 



1918 



U. S. Department of Agriculture 
Forest Service 



VASHINQTON : GOVERNMENT PRINTINO OFFICE : 19 * 



.W3& 



n. of B. 

f£8 15 1919 




On the Tonio Trail in the Grand Canyon 



Recreation Uses on the National Forests 



ENTG before the National Forests were established men went 
hunting in the woods and fishing in the streams. Camping 
and picnicking in the wilds had an ancient priority over the admin- 
istration of those same areas by the Federal Government for the ( 
production of timber and the conservation of water. These 
conditions were not changed by the assignment of the lands to the 
care of the National Forest Service, except that such recreation 
uses were multiplied and intensified. 

It is of course inevitable that the Forests should be so used. 
Outdoor recreation is a necessity of civilized life, and as civilization 
becomes more intensive the demand grows keener. The vast 
extent of our present National Forests, their enticing wildness, and 
the notable beauty of the native landscape lure men and women 
thither by hundreds of thousands. The really enormous extent 
and value of this kind of forest product has been generally over- 
looked in America. 



Recreation Uses on 



This oversight, however, is only local and temporary. In older 
countries, where public forests have existed for centuries, the 
recreation use of such areas has always been recognized. It would 
be perfectly easy to show that recreation was, in fact, the original 
and primary purpose in the creation of public forests. The 
ancient law of England is most significant on this point. From 
before Norman days until the reign of Charles II the legal defini- 
tion of a forest stood as follows: 

A certain territorie of wooddy grounds and fruitfull pasture, priviledged for wild 
beastes and foules of Forest Chase and Warren to rest and abide in, in the safe protec- 
tion of the King, for his princely delight and pleasure, which territorie of ground, 
so priviledged, is meered and bounded with irremoueable markes, meres, and boimda- 
ries, wether knowen by matter of record or else by prescription. 1 

Passing from ancient law in England to present conditions in the 
United States of America, we find that recreation uses on the 
National Forests are rapidly increasing, and that they have reached 
a stage where more definite and systematic provision must be 
made for them in the plan of administration. In view of this situa- 
tion, the Forester, early in 191 7, commissioned the writer to make 
an extended examination in the field and to report to him as to 
existing conditions of recreation, with recommendations of methods 
and general policies. 

The present report is based on a five months' field study of 
existing conditions. Visits were made to all the Forest districts, 
and to a considerable number of individual Forests. Special 
attention was naturally given to those regions where recreational 
developments appear to be most pressing. In this way it was 
possible to hold extended consultations with Forest officers having 
supervision of the lands thus used, and also with those private 
citizens who are using them. 

It should be said that the point of view of the writer is that of 
the professional landscape engineer. From this standpoint the 

'Townley, " English Woodlands," p. i. London, 1910. 



the National Forests 



landscape of the wide Forest areas has very great esthetic and 
human value. The mountains, glaciers, lakes, streams, woods, 
and natural parks contribute largely and effectively to human 
health and enjoyment. This contribution has a demonstrable 
value. The fundamental problem of the landscape engineer 
would then be to release these values, to make the human 
resources of the Forests accessible to visitors, and not merely 
accessible but intelligible and effective. 

The moment that recreation (using this word in a very liberal 
meaning) is recognized as a legitimate Forest utility the way is 
opened for a more intelligent administration of the National 
Forests. Recreation then takes its proper place along with all 
other utilities. In each particular case these utilities are weighed 
against one another and a plan of administration devised to 
adjust and harmonize, to the utmost point practicable, the various 
forms of use so that the largest net total of public good may be 
secured. Where one must be subordinated to another, prefer- 
ence is given to that of highest value to the public. 

With these general considerations in mind we may take a look 
at the National Forests, observing the extent and nature of cur- 
rent recreation activities. 

The simplest form of recreation is found in hiking, packing, 
or automobiling through the Forests. There have already been 
provided for administrative uses (fire protection, etc.), thousands 
of miles of trails. These are built to stand - 
Existing Recre- ardized specifications, the most popular type 
ation Uses ("Class A trails") providing for a safe, clean 
footway, 4 feet wide, laid at a maximum 
gradient of 6 per cent. Admirable examples of this kind of trail 
were examined in the Natural Bridge Area of the Appalachian 
Forest in Virginia. Here, in a mountain country readily acces- 
sible to the large eastern centers of population, these trails lead 
through splendid forests with inspiring landscape outlooks, across 



Recreation Uses on 




A camping party in the Uncompahgre National Forest. Forest Service fire tool box under tree on rigid 



delightful streams and amidst surroundings well adapted to 
camping and all the more rigorous forms of outdoor exploration. 

Yet this is merely a sample. Similar trails by hundreds of 
miles are found in the Forests of Colorado, California, Oregon, 
Washington, Montana, and indeed wherever the Forest Service 
has established its administration. 

Besides these trails, suitable for foot passengers and pack 
animals, there are within the Forests other hundreds of miles of 
roadway fit for wagon traffic and for automobiling. Much of 
this mileage has been built by the Forest Service, usually in 
cooperation with local (county or State) authorities. But, 
however financed, the finished roads lie far and tempting through 
the Forests. Thither the camper in his wagon and the tourist in 
his automobile take their way, and here they linger for days and 
weeks at a time. The mountains, streams, and woodlands are 
laid open to thousands of persons in this way, and no one counting 



the National Forests 



their crowding procession can doubt their appreciation of the 
opportunity. 

A typical example of this provision for public service is found 
in the " Park-to-Park Highway" running between the Yellow- 
stone National Park and Glacier National Park, constructed by 
Forest engineers and passing over the Great Divide and through 
the Beaverhead and the Bitterroot Forests. The most famous 
example is certainly the Columbia River Highway which, though 
not designed or built by the Forest Service, passes for miles 
through the Oregon National Forest. 

Along these automobile and wagon trails camps are in strong 
demand. Many trail tourists do not mind pat- 
Automobile ronizing the hotels a part of the time, but for 
Camps the rest they greatly prefer the tent and the 

camp fire. To meet their needs the Forest 
Service has laid out and equipped a large number of camps. These 
are always located where good water is available, and usually a 




Mount Hood 



ike Oregon National Forest 



8 



Recreation Uses on 




National Forest visitor registering his name, address, and destination. Wenatchee National Forest 

{Sunset Highway). 

practicable wood supply is an item of the equipment. Simple 
provisions are made for sanitation, and cement fireplaces are 
often installed. Sometimes telephone service is made available. 
Such camps are extensively used by travelers, especially along the 
more popular through routes. To a certain degree they prove a 
protection for the Forests, since the camp fires of the tourists, 
instead of being set in out-of-the-way and dangerous places, are 
made in safe areas. It is found, moreover, that the the campers, 
once their interest and cooperation is aroused, become a volunteer 
fire guard of no mean efficiency. In hundreds of instances these 
tourists report incipient fires or assist in putting them out. 

On the forest areas are many spots which, 
Picnic for special local reasons, have come to be 

Grounds popular as picnic grounds. The Big Hole 

battle field, near Wisdom, Mont., is a fair 
example. Here the old settlers hold an annual reunion, and 
parties congregate at other times. 



the National Forests 



Probably the most notable example of this form of recreation is 
found at Eagle Creek on the Oregon Forest, on the Columbia 
River Highway. Here the mountains open to the picturesque 
Eagle Creek gorge, through which a beautiful mountain stream 
flows down from the snows of Mount Hood. At the mouth of the 
stream, where it is crossed by the Columbia River Highway, the 
canyon widens into a small natural park surrounded by big trees. 
This spot is approximately 40 miles east of Portland, just the con- 
venient distance to make an acceptable stopping place for auto- 
mobiles running out from the city. Here the Forest Service has 
installed sanitary conveniences, a good water supply, a number of 
fireplaces, and picnic tables, with certain other practical accommo- 
dations for campers. 

And here the picnickers come literally by the thousands. On 
any pleasant Sunday in summer every table and camp lire is 
crowded and the grounds take on the appearance of circus day. 




An automobile camper in the Pike National Forest 



75062°— 18 2 



10 Recreation Uses on 

Hunting and fishing are perhaps the sports most typically 
associated with the Forests. In the great public forests of the 
Old World the rearing of game for food is often 
Game practiced on a large scale. The propriety of 

Preservation using our National Forests to multiply game 
for sport, for food, or for its own sake seems 
obvious. To these problems the Forest Service has already given 
considerable study. Specialists from the United States Biological 
Survey have also assisted materially in this field. 

Several large areas within the National Forests have been set 
aside through State legislation and Federal proclamation as game 
sanctuaries. In these areas various species of wild fowl, deer, 
elk, and bison are protected at all times. Hundreds of square 
miles adjoining the Yellowstone National Park are reserved in 
this way for the pasturage and protection of the elk. In the 
Wichita Mountains of Oklahoma is a very successful preserve 
devoted especially to the buffalo. Here there is a considerable 
herd of these animals, and they are thriving and multiplying in 
a very satisfactory manner. 

Forest officers everywhere cooperate with other Federal officials 
and with State and local authorities in stocking streams with 
trout or lakes with other fish and in their protection under 
State game laws. Indeed it is almost the rule that the local 
forest rangers shall be also State game wardens and shall assist 
everywhere in the enforcement of game laws. 

Some of the noblest landscape in the wide world is to be found 
within the National Forests. No argument is 
Scenic required to show that where such landscapes 

Reservations can ^ e preserved for human use without sacri- 
fice of other interests they should be firmly 
protected. And if in special areas this direct human value 
of the landscape can be shown to outweigh other economic 



the National Forests 



values it obviously becomes good public policy to sacrifice the 
lesser interest to the greater. 

Actually this is the situation which arises in many restricted 
areas. In the White Mountains of New Hampshire, for exam- 
ple, are a number of very beautiful neighborhoods the charm of 
Avhich could be quickly annihilated by heedless stripping of the 
forests. These specific localities have a high recreation value 
enjoyed by thousands of persons annually — a value immeas- 
urably greater than that to be reaped from a sale of the lumber. 
The preservation of such tracts for their purely scenic and 
recreational values seems hardly open to debate. The only 
questions are just what areas must be preserved for their land- 
scape beauty, how they shall be defined, and how they shall be 
managed to secure their largest contribution to the beautv of 
the landscape. An early study should be made in the White 
Mountain Forest to determine these very matters. 

There are hundreds of areas within the National Forests 
where similar reservations should be made for the same ends 
and on the basis of similar investigations. One other outstand- 
ing example deserves special mention. This is the scenery of 
Lake Chelan in central Washington. Here we have an ancient 
glacial gorge now dammed by the moraine at its mouth and filled 
with the deep blue waters of many glaciers. These glaciers 
hanging on the steep alpine heights which shut in the lake 
are reflected, along with the white rolling clouds upon the 
mountain summits, in the glassy waters below. If one had the 
wildest fjord of Norway brought inland and filled with sweet 
and quiet waters, or if one had Lake Brienz of Switzerland 
extended to a length of 50 miles, one would have a possible 
competitor for Lake Chelan; but until such improvements in 
terrestrial topography can be made this lake is unique. It 
is in short, and without exaggeration or qualification, one of 
the best landscapes in the world. 



12 



Recreation Uses on 



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the National Forests 13 

Fortunately a large proportion of the shores and of the adjoin- 
ing country belongs to the public and rests under the administra- 
tion cf the Forest Service. Fortunately, too, these immeasurable 
scenic values can be preserved without the slightest interference 
with the timber values or with the greater grazing interests 
in this territory. Here everything is to be gained and nothing 
lost by a frank recognition of esthetic values and an administra- 
tion based on the policy of making all utilities (lumbering, 
grazing, irrigation, watershed protection, mining, and landscape 
beauty) fully available to the citizens of the entire country. 

In our scheme of legislation and administration the National 
Monuments are frankly a makeshift. The man in the road finds 
the idea a puzzle. Let it be explained there- 
The National f° re that each National Monument is created 
Monuments presumably for the preservation of some natural 
wonder or some historic or prehistoric relic. 
The land including the objects to be preserved is withdrawn from 
the usual status of public lands. It can not be taken up for 
private use either as farm homesteads or for mining or other 
similar commercial uses. It is closed to commercial exploitation. 
This withdrawal is made by presidential proclamation, and 
herein lies an important difference between a National Monu- 
ment and a National Park, which can be created only by act of 
Congress. 

Here is another inconsistency which troubles the average 
man, in that some of the National Monuments are administered 
by the Department of the Interior while others are under the 
management of the Department of Agriculture, and two are under 
the authority of the War Department. The practical explanation 
of this discrepancy is to be found in the fact that some of the 
Monuments were erected out of lands already under administration 
of the Department of Agriculture as National Forests, and the 



Recreation Uses on 




Devil's Post Pile National Monument 



the National Forests 



15 




Recreation Uses on 



proclamations which altered the status of the lands did not dis- 
turb the existing administration of those lands. It was more 
simple and economical to leave the care of these areas in the hands 
of the men already in charge, with an organization on the ground 
which had to be maintained in any case. 

On the other hand, some National Monuments were established 
from other lands in the hands of the Department of the Interior; 
and in these cases likewise the status of the land was changed 
without affecting the administrative authority. 









IB 1 








Old cliff dwellings, Bandelicr National Monument, Santa Fe National Forest 



the National Forests 1 7 



In this way the Forest Service finds itself charged with the 
administration of a number of areas from which the usual com- 
mercial utilities have been excluded by law and which have been 
specifically reserved for recreational and allied purposes. 1 

One of these National Monuments stands so clearly in a class 
by itself that a special word should be given to it here. This is the 
Grand Canyon of the Colorado in northern 
The Grand Arizona. By consent of the civilized world 

Canyon this stands enrolled as one of the foremost won- 

ders of creation. It exhibits beyond all dis- 
pute those qualities which have thus far generally controlled in the 
making of our National Parks. The propriety of including the 
Grand Canyon in our National Park family is so overwhelming 
that no objection could be raised against it, if indeed anybody 
were disposed to raise such objection. 

Yet in the natural course of legislation and executive procedure 
the Grand Canyon has become, not a National Park, but a National 
Monument, and the Forest Service has been charged with its 
protection and administration. And the Forest Service must 
obviously do the best it can, not to make a Forest of the Grand 
Canyon, but to manage it as a National Monument. 

At Fresno, Cal., is located a State normal school. This school, 

desiring to maintain a summer session, but finding the midsum- 

„ .. mer climate at Fresno inconvenient, has ar- 

Cooperation 

vn. t +•-!. ranged to hold such summer sessions at Lake 
with Institu- ° 

j' Huntington, about 75 miles back in the moun- 

tians. Here in a glorious black forest, beside 
a cool glacier-fed lake and almost within reach of the perennial 
snows, the normal school is building up a permanent equipment 
of dormitories, classrooms, and laboratories. This development 

1 A list of the National Monuments now under the administration of the Forest vService is given in an 
appendix. 

75062°— IS 3 



18 



Recreation Uses on 




the National Forests 19 



is going forward on land leased in one of the National Forests. 
The active cooperation of the Forest Service has from the first 
been an essential factor in this undertaking. 

At other points on the lands of the National Forests other 
institutions of various characters have developed, the ground being 
held under liberal leases. In this list should be included schools, 
sanatoria, fraternal camps, summer resorts, etc. 

Perhaps the most interesting of all recreational developments 
on the National Forests is to be seen in the municipal playgrounds. 
The first and most fully developed of these is 
Municipal tne one established by the city of Los Angeles, 

Playgrounds Cal., on Seeley Creek Flats in the Angeles Na- 
tional Forest. Here the city leased from the 
Forest Service a tract of 23 acres of well-wooded mountain land 
beside a pleasant stream and lying at an elevation of 3,500 feet. 
On this tract they have erected 61 small summer bungalows, each 
capable of accommodating from two to six persons. These 
are furnished with cot beds. A central clubhouse has been 
built; also a central kitchen with a pleasant outdoor dining 
room. Water supply, sanitary equipment, cement swimming 
pool, tennis courts, and other simple camp facilities have been 
provided. When in full swing the camp will take care of about 
300 persons. 

This camp is under the management of the Los Angeles Play- 
ground Commission, and is run as a part of the city playground 
system. Citizens of Los Angeles who wish to take a vacation in 
the mountain forests register with the playground commission 
and are sent out in relays for terms of two weeks. Some classifi- 
cation of vacationists is made. For example, the first two weeks 
of the season the camp will be open to families, the second two 
weeks to boys' clubs, the third fortnight to women and girls' 
clubs, etc. Members of the regular trained playground staff are 



20 



Recreation Uses on 




Los Angeles Municipal Camp, Angeles National Forest 



on hand to direct the work of the camp. Each camper is expected 
to help with the necessary camp work, which averages something 
less than one hour's labor a day. The bungalows, beds, and food 
are supplied by the city; also transportation by rail and automo- 
bile from Los Angeles to the camp (about 85 miles) and return. 
This entire two weeks' vacation, house, food, and transportation, 
costs, under war conditions of 191 7, $8.50 per person. After par- 
ticipating personally in the camp of 191 7 I can testify that the 
accommodations are clean and comfortable, the food wholesome 
and abundant, the surroundings delightful; and I am reliably 
informed that the city had a balance of profit left at the close of 
the year's operations. 

Several other cities have taken leases on other Forest tracts 
for similar use, so that this form of municipally directed recrea- 
tion bids fair to reach a considerable popularity. 



the National Forests 



A great many persons prefer to do their summer camping 

in comfortable cabins of their own building. These they like 

to own. Under special legislation designed 
Permanent tQ meet this need the p orest s erv i ce now 

" leases small tracts (one-fourth acre to i acre) 

to such persons on terms which make it feasible for them to build 
and furnish their own camp houses. Naturally, these camps 
are gregarious, both because most campers like a little society, 
even in the woods, and because the attractions of pleasant 
streams or lakes appeal to many persons alike. 

The obvious tendency therefore is to develop this important 
type of forest recreation in the form of small summer colonies, 
usually upon streams or lakes. Several hundred such centers 
have already been established. These are pretty well dis- 
tributed over the entire National Forest domain. The most 
intensively developed are those in the Angeles Forest north of 




.-1 summer camp in the Shasta National 



22 Recreation Uses on 



Los Angeles, Cal., where every canyon which has running water 
is crowded full of camp houses, many of them substantial and 
well furnished and occupied for several months of the year. 

Indeed some of these colonies readily pass from the character 
of summer camps to the condition of permanent towns. At 
Cascada, Cal., where there is now a railroad 
Permanent terminus serving an active lumber industry, 

Communities a large and permanent hydroelectric de- 
velopment, and a growing vacation clientele, 
the town shows every assurance of permanence. Yet it is all 
built upon the land of the Sierra National Forest, not a foot 
of which can be patented. Every building, every street, and 
every public utility of every sort exists upon a revocable permit 
granted by the Forest Service. It is true that, at some future 
time^if the development of Cascada continues, the territory may 
be eliminated from the Forest and the town thrown on its own 
resources, the land may be deeded to individuals, and all the 
usual agencies of local government set in operation; but by 
that time the physical form of the town will be largely fixed — 
for better or for worse. 

One other specific example out of many deserves separate 
mention. In the Cleveland Forest, at an elevation of about 
i mile, is a tract of land covering several thousand acres and 
possessing a somewhat remarkable landscape beauty. There 
is a good forest cover, mostly of yellow pine and black oak; 
there are numberless grassy natural parks; there are many 
springs of sweet water, running brooks, and two attractive 
little lakes. 

This tract lies about halfway between San Diego on the west 
and the Imperial Valley on the east, and is accessible by auto- 
mobile over a good road recently constructed by Forest Service 
engineers. This road connects with a new State road between 



the National Forests 23 



San Diego and El Centre Now the Imperial Valley, though 
highly prosperous agriculturally, does not enjoy a salubrious 
summer climate. Rather is it noteworthy for its aridity and 
its consistent warmth. The citizens therefore, living below 
sea level, look longingly to the mile-high mountains, 70 miles 
away on their western horizon, where great trees give benevolent 
shade, where brooks of sweet water run singing over the stones, 
and where quiet lakes reflect the dark shadows of the pines. 
On the good roads now provided, these delectable heights can 
be reached by automobile in three or four hours. Is it any 
wonder that the dwellers in the hot valley should covet these 
well- watered mountains as a place of summer residence? Many 
of the people of San Diego, to whom the tract is equally acces- 
sible, would likewise be well served by summer homes on 
these same mountains. 

Apparently these plain needs can be fully met in the Cleveland 
Forest without the slightest sacrifice of other Forest utilities. 
This means, however, the development of a practically permanent 
community on virgin land. Streets must be laid out, lots sur- 
veyed, water supply protected, sanitary precautions insured, and 
provision made for public buildings, playgrounds, and all equip- 
ment of a full-fledged and active community. In short, we have 
here presented a most fascinating problem in town planning. 

Having now enumerated the principal forms which recreation 

assumes on the National Forests, and having in view the question 

as tti what policies should prevail in the admin- 

Valuation of istration of these interests, it seems desirable 

Recreation to form the clearest possible conception of the 

extent and value of this recreation. 

In the summer of 191 6 forest officers in the field were directed 
to report upon the number of recreation visitors with a rough 
classification of their activities — camping, fishing, hunting, motor- 



24 Recreation Uses on 



ing, hiking, etc. As the investigation was new, the specifications 
somewhat vague, and the census officers were preoccupied with 
other duties, the results when compiled could not be too freely- 
accepted as decisive. Personal examination convinces me that 
the numbers reported were generally too low. Nevertheless, the 
summary figures indicated that approximately two and a half 
million persons during the summer of 191 6 entered upon the 
National Forests for some kind of recreation. 1 During the summer 
of 191 7 the census, which it had been planned to continue, was 
seriously impaired through the depletion of the Forest staff by 
enlistment in the Army. However, a certain number of Forests 
were able to report the count of recreation visitors for the year, 
and these reports indicate very clearly a substantial increase over 
the year 191 6. A conservative estimate for 191 7 would place the 
total of recreation visitors at 3,000,000. 

If these figures seem large it must be remembered that the 
National Forests are large. They cover three and one-half times 
the area of all New England. There are 151 different Forests, 
with an area of about 156,000,000 acres, occupying territory in 22 
different States and Territories. 

A further estimate made by the forest officers on the ground 
indicates that the average stay of these visitors was two and one- 
half days. This gives us a basis for a more accurate measurement 
of the total recreation product, since students of this subject 
generally agree that the hour is the proper unit by which to measure 
recreation. If, then, the average visitor spent two and one-half 
days on the Forests, and if we call these 10-hour days, thus con- 
verting the time per person to 25 hours; and if we multiply this 
factor by the number of visitors (3,000,000) we reach the con- 
siderable total of 75,000,000 recreation hours. While the factors 

1 It soems probable that in these totals a good many individuals were counted twice. Thus a single 
person might pass through 10 different Forests and be separately counted in each of them. This fact, how- 
ever, does not affect our computation. 



the National Forests 25 



here used are all estimates, they are carefully made upon actual 
counts, and the final product is not far from the truth. 

The further matter as to the market value of this body of 
recreation can be determined within reasonable limits. Mr. G. A. 
Parker, superintendent cf parks in Hartford, Conn., the recognized 
authority on such matters, computes that park recreation as 
managed in the United States costs on the average 2 cents an 
hour. This, however, is cost, not value. 

The human value of an hour spent in skating in a city park or 
fishing in a National Forest would be hard to estimate; but ulti- 
mate human values are seldom estimated in dollars and cents. 
Our usual figures indicate merely commercial values, i. e., market 
prices. Now the commercial value or market price of recreation 
is determinable quite as easily and exactly as the price of beans 
or books or tobacco. Enormous quantities of recreation are daily 
bought and sold in the open market, and the prices are as well 
recognized as for any commodity of commerce. The movies cost 
10 cents or 15 cents; the vaudeville theaters cost 25 cents or 50 
cents; the "legitimate drama" costs 50 cents to $2 a hearing; 
concerts cost from 25 cents to $2; grand opera, $2 to $5; a base- 
ball game costs 50 cents; the circus costs 50 cents for the big tent, 
10 cents for the concert, and 10 cents for the side show. 

A moment's thought will show that 5 cents an hour represents 
the absolutely minimum cost of commercialized recreation. In 
some towns a person can buy the mild entertainment of an hour's 
ride on the street cars for a nickel. There still are streets where 
the movies perform indescribable rubbish for 5 cents. 

On the whole, however, it is perfectly clear that very few and 
very questionable forms of recreation are offered at the price of 
5 cents an hour. If we go up to 10 cents an hour the availabili- 
ties improve. The movies are better; we can occasionally get into 
a skating rink for a dime; we can buy an hour's reading in a cheap 



26 Recreation Uses on 

magazine; we can ride out to the park and back; or we can get 
10 cents' worth of fishhooks and go fishing. Our choice is still 
much restricted. 

If we seek a comparison with forms of recreation more nearly 
like those offered by the Forests, our results are less precise but 
no less convincing. A few men are able to maintain private hunt- 
ing and fishing clubs in the Adirondacks, in Maine, or on the 
Restigouche. The time they pass at these resorts costs them 
anywhere from $i to $10 an hour. To take a vacation at any 
public seaside or mountain resort costs from $2 to $10 a day. 

These figures, though somewhat sketchy, are a statement of 
plain facts. In view of them the following generalizations are 
self-evident : 

1. The minimum market cost to the consumer of wholesome 
recreation privately provided is 10 cents an hour. 

2. The average cost of commercial recreation is much higher, 
probably lying somewhere between 25 cents and $1 an hour. 

It ought to be self-evident, further, that the great bulk of such 
recreation is worth all it costs. If it isn't, the large majority of 
our whole population are being daily robbed in their recreation 
bills. One more premise hardly needs an argument, viz, that the 
average recreation on the National Forests is as valuable in all 
human ways as the average of commercial recreations. 

Now if we take even the minimum of these estimates and apply 
the figures to the problem in hand the results are fairly sober- 
ing. For 75,000,000 recreation hours annually yielded by the 
National Forests (and these figures will be quickly and widely ex- 
ceeded in years to come), valued at the minimum of 10 cents an 
hour, amounts to $7,500,000 — a pretty penny. 

Stated in general terms it appears that the recreation use of the 
National Forests has a very substantial commercial -value, and that 
recreation stands clearly as one of the major Forest utilities. 



the National Forests 27 

We have seen the wide extent and variety of recreation uses on 

the National Forests, and we have considered briefly the commer- 

cial value of this product. We are now in a 
General . . ,. , , 

p ,. . position to discuss some of the questions of 

public policy as implied in these data. Such 

questions of policy must inevitably have a considerable influence 

on the practical administrative operations of the Forest Service. 

It would seem that the following principles may be safely 
adopted : 

i. Recreation upon the Forest areas is a social utility of large 
dimensions and very substantial value. 

2. Recreation of many kinds, all legitimate, develops on prac- 
tically all areas of the National Forests. It is inherent in the 
character of the Forests and must be recognized as a permanent 
and universal factor in Forest administration. Only by the most 
drastic and extraordinary administrative measures could recrea- 
tion be excluded from particular Forest areas. 

3. Being a public utility of great value and being inevitable 
to the Forest administration, recreation should be developed by 
the Forest Service on the same basis as any other Forest utility. 

The most logical statement of the situation is made by saying 
that recreation stands on a par with other major uses of the 
Forest areas, and is to be managed on its merits precisely like 
the others. These major uses are — 

Timber production 

Grazing. 

Watershed protection. 

Recreation. 
And from the figures given it would appear that recreation is by 
no means an unworthy member of this group. 

Now the policy with respect to handling these several utilities on 
the Forest areas has never been obscure. Where two or more of 



28 Recreation Uses on 

these main uses can be served at the same time on the same 
area they are carried forward side by side, sometimes in actual 
cooperation. Whenever two of these uses come into conflict, 
some authority determines which is likely to render the greater 
public service. This then becomes the paramount use on the 
area in question; other uses are secondary, and, if they interfere 
seriously with the primary use, they are altogether excluded from 
the area. This policy is so obvious, simple, and practical that it 
needs no defense. 

Moreover this policy need not be changed in the slightest 
when recreation comes to be recognized in the list of major 
utilities. It is, in fact, the policy already and inevitably adopted. 
On the principal areas of the National Forests recreation is an 
incidental use; on some it is a paramount use; on a few it becomes 
the exclusive use. 

With respect to this matter as it affects the internal workings of 
the Forest Service alone, some emphasis should be placed on 
the fact, frequently not recognized, that the recreation use on 
Forest lands only rarely interferes with other uses. In general 
the natural development and protection of the Forests operates 
directly to enhance the recreation values. On the other hand 
recreation, except where it becomes intensive at certain points, 
seldom infringes upon other uses of the Forest. The development 
of this fact has been, in some cases, rather surprising. For 
example, it has been found, contrary to common expectation, 
that the presence of campers and summer-home permittees in 
considerable numbers, instead of increasing the fire risk has in 
some cases actually assisted in fire protection. Any general 
argument therefore which alleges a conflict between the recreation 
uses and other Forest utilities starts from a premise which is not 
true. 



the National Forests 29 

In any study of public recreation on the National Forests one 

can not go very far without facing problems which lead beyond 

the confines of the Forest Service. Especially 
Extra-depart- ., ,. u . U1 . 

. , r . must consideration be given to possible mter- 

mental As- , . . . , ° . , „ . ' . 

, relations with the National Park Service, 

pects 

a separate branch of the Federal organization 

designed specifically to care for the larger enterprises of recrea- 
tion on public lands dedicated to such use. It has been sug- 
gested that the existence of a National Park Service made it 
unnecessary and unwise for the Forest Service to concern itself 
at all with such matters. 

As soon as any attempt is made to bring such theoretical sug- 
gestions down to a practical working basis they take form in one 
or the other of the following schemes: Either to turn over to the 
Park Service all recreational activities wherever located, or to 
transfer all recreation areas bodily from the National Forests 
to the National Parks. These two schemes are equally impossible, 
but on account of their frequent reappearance their unworkable- 
ness should be briefly exhibited. 

The former plan would require the Forest Service and the Park 
Service to operate jointly in the same territory; and while such 
cooperation might conceivably be established in a few carefully 
delimited territories, it is altogether out of reason to expect such 
a dual administration to succeed over the enormous and far-flung 
areas of the National Forests and National Parks. The sugges- 
tion indeed proceeds on the assumption that only a few restricted 
portions of the Forests are used for recreation. This assumption is 
very far from the truth. The fact is, as already pointed out, that 
public recreation develops upon practically every square mile of 
the Forest domain. Such an interpenetration of two branches 
of administration (which now exist in two separate executive 
departments) could be accomplished only by the practical amal- 



30 Recreation Uses on 

gamation of the two services. It would be practically necessary 
to consolidate the Forest Service and the Park Service into one 
administration under a single head. 

The other alternative of transferring all recreation areas to 
the National Parks would simply abolish the National Forests. 
For as long as any Forests are left they will continue to be used 
for purposes of recreation; and these uses will be extensive and 
valuable. 

While both these ideas are manifestly absurd when offered for 
sweeping adoption, each has some merit when applied within 
important limitations. Some degree of cooperation has naturally, 
almost necessarily, been established between the Forest Service 
and the Park Service, for example in the lire patrol of neighboring 
areas. Arrangements might be made, and obviously should be 
made, for connecting Park trails with Forest trails where the two 
services administer adjoining lands. Mention has already been 
made (p. 7) of the " Park- to- Park Highway" built through the 
National Forests and connecting Yellowstone and Glacier National 
Parks. Rather extensive timber cuttings for forest improvement 
and fire protection are needed at the present moment in certain 
places in the National Parks, and such operations could probably 
be conducted most advantageously by experienced men from the 
staff of the Forest Service. Cooperation in these and similar 
ways is much to be encouraged; but all this falls far short of the 
wholesale exchange of services imagined by those who would 
offer this as a complete solution of all administrative problems. 

The second suggestion, that recreation areas be taken out of 
the National Forests and added to the National Parks is also 
capable of limited application. It has in fact been adopted in 
the case of Glacier and Rocky Mountain National Parks ; and the 
move to assign the Grand Canyon to the family of the National 
Parks is approved by all informed persons. 



the National Forests 



31 




32 



Recreation Uses on 




Santa Fe Lake, Santa Fe National Forest 



the National Forests 33 



But any general movement in this direction faces serious perils. 
At the present moment there are being pushed a dozen or more 
ill-considered schemes to establish "National Parks," which 
parks would be obviously in no sense national except that Uncle 
Sam might foot the bills. The plain intent of some of these 
proposals is to appropriate the advertising value of the National 
Park name for the benefit of some city or local community. 
Against all such schemes it is necessary in the public interest to 
make the strongest stand. Were such a policy to be followed the 
result would be a serious menace both to the National Forests 
and to the National Parks. The Forests would suffer through 
the alienation of important areas and the disturbance of Forest 
administration. The Parks would suffer through the degra- 
dation of their present high reputation. 

To anyone who examines the facts at any length in their prac- 
tical bearings it soon becomes evident that special areas can not 
be arbitrarily transferred from the National Forests just because 
they happen to be used for recreation. Even areas on which 
recreation comes to be the exclusive use can not always, or even 
generally, be segregated in this manner. As a striking example 
of this principle the White Mountain Forest of New Hampshire 
may be cited. The White Mountain territory is peculiarly 
suited to recreation of many kinds. It is largely and intensively 
used for these purposes. It would be very easy for the theorist 
to say that this section is worth much more for its beauty than for 
its timber and that therefore it must be a Park instead of a Forest ; 
yet the history of the region and of the legislation establishing the 
present National Forest are such as positively to require the 
continuance of the Forest administration. 

Under such circumstances it is idle and mischievous to talk 
about the suppression of recreation activities on the National 
Forests, or of divesting the Forest Service of the administration 
of recreation uses, or of any other policy than a clear-cut, straight- 



34 Recreation Uses on 



forward development of recreation utilities on their merits and 
by the best known means. 

The inevitable conclusion from these considerations is that the 
Park Service be entrusted with the care of large and important 
areas where the preservation of unique landscape values is of 
paramount importance and where recreation is the exclusive 
utility ; but that areas in which several utilities, including recrea- 
tion, are to be administered should properly be assigned to the 
charge of the Forest Service. Such a policy would be intelligible 
and practical, and can be carried out by the organizations now in 
the field. 

Within the Forest Service organization another serious problem 
now emerges. As soon as it. becomes clear that recreation is an 
important and a permanent utility upon the 
A Perennial Forests and that it must be administered on 
Problem its merits in fair comparison with timber pro- 

duction, watershed protection, grazing and 
other utilities, it becomes clearly necessary to provide the methods 
whereby the varying (and sometimes conflicting) claims of these 
several utilities may be adjudicated. The Forest Service has 
already developed intensive studies in land classification which 
lead in this direction. This classification of lands as to their 
uses may easily be carried farther and may be made to include a 
consideration of recreation values. 

But conditions change from year to year. An adjustment 
which is fair to all interests now may not be wisest under the new 
conditions 10 years hence. We seek a moving equilibrium. In 
short, the Forest Service needs, within its own organization, a 
committee on forest utilities which shall constantly endeavor to 
secure the fullest development of all the resources in the National 
Forests. Before this committee all questions of recreation uses, 
landscape protection, and their like will be determined in fair 



the National Forests 35 

comparison with other utilities. Such a committee would be 
able to decide with respect to each unit of the Forest areas the 
extent to which recreation might be permitted or encouraged, 
whether it should be subordinate or paramount to grazing, timber 
production, or watershed protection, and what assignment of 
responsibility within the Service personnel would best meet the 
needs of the area as weighed by the committee. 

Plainly such a committee should include some one with a liberal 
and sympathetic knowledge of recreation and landscape values, 
just as it would need men well informed as to timber values and 
grazing values. Some such competent court is actually necessary 
to the just development of recreation utilities on the National 
Forests. Steps have already been taken to extend the w r ork in 
land classification so as to meet these requirements. 

It has always been the policy of the Forest Service to employ 

men of special technical ability on the numerous problems arising 

_ ... in the management of the Forests. Thus 

Specially 

T jif men trained in technical forestry are placed in 

»r j » charge of sylvicultural operations, men expert 

in the cattle industry control questions of graz- 
ing; while mining engineers, land surveyors, lawyers, entolmolo- 
gists, and statisticians are employed for those investigations, 
operations, and lines of administration in which they are severally 
experienced. A considerable part of the success achieved by the 
Forest Service has unquestionably been due to this policy. 

When we come now to recognize recreation as an essential and 
inescapable Forest utility we can not be blind to the need of special- 
ized service of another kind. It will be seen that the undertakings 
actually in hand as enumerated in earlier sections of this pamph- 
let (viz, trail location, planning and equipment of automobile 
camps, picnic grounds, protection and development of scenic 
reservations, game preservation, recreation activities in National 



36 Recreation Uses on 



Monuments, the layout of permanent camp areas, the planning 
of permanent communities, etc.) fall most nearly within the field 
of the landscape engineer. A somewhat specialized kind of land- 
scape engineering is in fact needed upon these Forest problems, but 
in a general way the professional training actually available in 
landscape engineering best meets the special requirements here 
developing. 

The principal conclusions reached in the foregoing discussion 
may be briefly summarized as follows: 

_ • , i. The National Forests cover wide areas of 

General 

land, much of it wild, interesting, and beau- 

Summary & 

tiful in a surpassing degree. The total area 

is approximately 156,000,000 acres, equal to about three and 
one-half times the whole of New England, or to the combined 
States of Louisiana, Alabama, Florida, Georgia, and Mississippi; 
or to the great block of Central States, Iowa, Missouri, Illinois, 
Indiana, and Ohio. These Forests are distributed through 22 
States and Territories. 

2. Historically it appears that National Forests were first 
created for purposes of recreation, and that this use is traditionally 
universal. 

3. Actually it appears that the National Forests of the United 
States have always been extensively used for recreation and that 
these uses are rapidly increasing. 

4. The principal forms of recreation now in vogue are hunting, 
fishing, hiking, packing, camping, automobiling, and picnicking. 

5. The construction and general supervision of permanent 
camps, picnic grounds, playgrounds, and town sites has become 
clearly necessary in the public interest. 

6. Game preservation has already been recognized as a legiti- 
mate and worth-while feature of Forest administration. 



the National Forests 37 

7. The protection of particularly good scenery and of relics of 
historic or archaeological value is also recognized as a proper 
function of Forest Service administration. 

8. Several National Monuments assigned to the care of the 
Forest Service are maintained mainly for recreational purposes 
and for purposes of study. 

9. The extent to which the Forest areas are already being used 
for recreation is remarkable. It appears that about 3,000,000 
persons annually visit the Forests for recreation, and that their 
number is rapidly increasing. It is estimated that the average 
stay of these visitors is two and one-half days. 

10. A cash valuation may be reasonably placed on this body of 
recreation. According to the lowest possible estimates it would 
have a commercial value of $7,500,000 annually. 

1 1 . At all events it seems obvious that recreation must be 
recognized as a large and highly valuable utility in the National 
Forests, and that this utility must be fairly conserved and devel- 
oped in proportion to its value to the public. 

12. To this end the Forest Service should undertake to make a 
study of general recreation policies and of the specific require- 
ments of specific areas within the National Forests, so as to arrive 
at a correct estimate of recreation values and to provide the 
best means of developing and administering these utilities. 

13. In this work the Forest Service should employ men suitably 
trained and experienced in recreation, landscape engineering, and 
related subjects. 



38 



Recreation Uses on 



Appendix I 
The National Forests 



State in which 
located. 



Alaska . . 
Arizona . 



Arkansas . 
California. 



Colorado. 



Forest. 



Chugach 

Tongass 

Apache 

Coconino 

Coronado <*.... 

Crook 

Dixie o 

Kaibab 

Prescott 

Sitgreaves 

Tonto 

Tusayan 

Arkansas 

Ozark 

Angeles 

California 

Cleveland 

Crater a 

Eldorado o. . . . 

Inyo" 

Klamath a, . . . . 

Lassen 

Modoc 

Mono a 

Monterey 

Plumas 

Santa Barbara 

Sequoia 

Shasta 

Sierra 

Siskiyou a. 

Stanislaus 

Tahoe a 

Trinity 

Arapaho 

Battlement . 

Cochetopa 

Colorado 

Durango 

Gunnison 

Hayden a 

Holy Cross. .. . 
La Sal a 



Colorado. 



Florida. 
Idaho. . 



Acres. 
5,418,659 
I5> 4Si,7i6 
1,182,782 
1,601, 598 
1,307,461 

870, 130 

17,680 

1,072.900 

I;433i366 

659,337 
1,994,239 
1, 602, 750 

626, 746 

291, 840 

820, 980 

807,444 

547,981 
46,977 

549-392 
1, 269,980 
1,470,841 

936, 877 
1,182,986 

784.620 

316,058 
1, 144,835 
1,688,571 
1,882,980 

803,448 
x, 489, 934 

349,069 

810,399 

542, 226 
i,43°>547 

634, 903 

651,227 

905-723 

847-328 

614, 129 

908,055 
65,598 

576.905 
27,444 
Part — Area of Forest in more than one State 



State in which 
located. 



Michigan. . 
Minnesota. 



Forest. 



Area. 



Leadville 

Montezuma. . . 

Pike 

Rio Grande. . . 

Routt 

San Isabel .... 

San Juan 

Sopris 

Uncompahgre. 
White River. . 

Florida 

Boise 

Caches 

Caribou" 

Challis 

Clearwater. . . . 
Coeur d'Alene. 

Idaho 

Kaniksu" 

Lemhi 

Minidoka". . . . 

Nezperce 

Payette 

Pend Oreille. . 

St. Joe 

Salmon 

Sawtooth 

Selway 

Targheeo 

Weiser 

Michigan 

Minnesota 

Superior 

Absaroka 

Beartooth. . 
Beaverhead . . . 

Bitterroot 

Blackfeet 

Cabinet 

Custer 

Deerlodge 

Flathead 

Gallatin 



Veres. 
934.017 
700, 082 

,080,381 

, 136, 884 
833, 4S9 
598,912 
617,995 
596, 986 
790, 349 
848,018 
308, 268 

, 058, 941 
492, 668 
681,540 

,259,237 
785, 103 
662,611 

,193,439 
198, 757 

•095,924 
509,536 

, 624, 582 
831,926 
676,014 
493-925 

.621, 707 

.203.387 

.693,711 
977,847 
562.609 
89. 466 
190, 602 
857-255 
842,467 
662.537 

,337-223 

.047.012 
865,077 
830.676 
428.922 
833,178 

, 802 , 905 
564.855 



the National Forests 



39 



The National Forests — Continued 



State in which 
located. 



Montana. 



Nebraska. 
Nevada. . . 



New Mexico. 



North Carolina . 

Oklahoma 

Oregon 



Forest. 



Helena 

Jefferson 

Kootenai 

Lewis and Clark. 

Lolo 

Madison 

Missoula 

Sioux" 

Nebraska 

Dixie" 

Eldorado" 

Humboldt 

Inyo" 

Mono " 

Nevada 

Tahoe " 

Toiyabe 

Carson 

Coronado " 

Datil 

Gila 

Lincoln 

Manzano 

Santa Fe 

Pisgah b 

Wichita 

Cascade 

Crater" 

Deschutes 

Fremont 

Klamath « 

Malheur 

Minam 

Ochoco 

Oregon 

Santiam 

Siskiyou" 

Siuslaw 

Umatilla 

Umpqua 

Wallowa 



Acres. 
687,983 

1,039.766 

1.336,061 
811,161 
850,677 
958,691 

1,031, 529 

96, 743 

206,074 

282, 543 

400 

1.301,073 

72.817 

464,3I5 

1. 220,929 

14,853 

I, 907. 286 

856, 647 

126, 478 

2. 670,412 
1,463,708 
I, 155,206 

606, 482 

1,354,545 
53,8io 
61,480 

1. 021. 461 
793.044 

1. 292,423 

855,342 

4,401 

1,057.682 
430, 757 
716, 564 

1,031,926 
607 , 099 
998, 044 
544,178 
485,786 

1,011,097 
957-557 



State in which 
located. 



Oregon 

Porto Rico. 
South Dakota 

Utah 



Washington . 



Wyoming. 



Forest. 



Wenaha" 

Whitman 

Luquillo 

Black Hills".. 

Harney 

Sioux " 

Ashley" 

Cache" 

Dixie" 

Fillmore 

Fishlakc 

La .Sal" 

Manti 

Minidoka". . . . 

Powell 

Sevier 

Uinta 

Wasatch 

Chelan 

Columbia 

Colville 

Kaniksu" 

Okanogan 

Olympic 

Rainier 

Snoqualmie. . . 
Washington.. 

Wenaha " 

Wenatchee. . . 

Ashley" 

Bighorn 

Black HUN" 

Bridger 

Caribou" 

Hayden." . 
Medicine Bow 
Shoshone. . . 
Targhee " . . . . 

Teton 

Washakie. . . . 
Wyoming. . . . 



Acres. 
425,504 
884, 485 
12,443 
483,403 
548,854 
75,524 
973,871 
264, 194 
432, 784 
699, 579 
656, 740 
519,384 
789,957 
72,123 
689.927 
729,061 
9SS.602 
604, 594 
677,429 
784. 498 
754- 886 
257,859 

1,486,325 

1.534,689 

1,315,891 
698, 043 

1.454.214 

3i3,434 

665, 276 

5,987 

1.119,725 
144,759 
710,570 
6.547 
322,175 
469, 786 

1,576,043 
335-47I 

1,922,947 
852,653 
899, 980 



" Part — Area of Forest in more than one State. 
t> Area acquired under the Weeks law. 



40 



Recreation Uses on 



Lands Acquired Under the Weeks Law 

To January 1, 1918 



State in which 
locate. 1. 


Area. 


Areas 
acquired. 


State in which 
located. 


Area. 


Areas 
acquired. 






Acres. 

7,661 
5S.067 
30. 530 


Tennessee 




Acres. 

83,875 












Savannah (part). . . . 


White Top (part). . . 

Massanutten 

Natural Bridge 

Potomac (part) 

Shenandoah (part) 
White Top (part).. . 

Monongahela 

Potomac (part) 

Shenandoah (part). . 


40.906 
38, 168 


New Hampshire. 
North Carolina. . . 


(part) 

White Mountain 
(part) 

Mount Mitchell 


413 

241,878 

1,181 
54. "IS 


West Virginia. . . . 


71, 710 
22,879 

87.I59 
11.358 
44,920 


South Carolina. . . 


Savannah (part) .... 
Savannah (part) .... 


31-780 
13.921 


13 > 319 



the National Forests 



41 



Appendix II 

National Game Preserves 

The following national preserves situated wholly or in part 
within National Forests have been designated under special 
acts of Congress for the protection of game : 



Name. 


National Forest. 


State. 


Act approved. 


Latest proc- 
lamation. 


Area. 












Acres. 


Grand Canyon 




i . iHune 3. 1909 
l(S34tat.,6o 7 .) 1 




North Carolina. . . . 








Mar. 1.1911 
(36 Stat. >9 6i.) 
Jan. 24, 1905 
(33 Stat., 614.) 


Oct. 17. 1916 
June 2, 1905 


53- 810 


Wichita.. , 


Wichita 


57.12° 











42 Recreation Uses on 

Appendix HI 

National Monuments within National Forests 

i. Bandelier National Monument, in the Santa Fe Forest, New 
Mexico; area, 22,075 acres; created to preserve prehistoric 
aboriginal ruins. 

2. Devil's Post Pile, in the Sierra National Forest, California; 
area, 800 acres; created to reserve lands of scientific interest due 
to the existence of lava field, etc., and as an illustration of vol- 
canic activities. 

3. Gila Cliff Indian Dwellings in the Gila National Forest in 
New Mexico; area, 160 acres. The Gila Hot Springs Cliff Houses 
are the best representative of cliff dwellers' remains in that 
region. 

4. Grand Canyon National Monument, in Arizona, made from 
Kaibab and Tusayan National Forests; area, 806,400 acres. 
This is the greatest eroded canyon in the United States. 

5. Jewel Cave, in the Black Hills Forest in South Dakota; area, 
1,280 acres. Natural formation consisting of a cave of great 
scientific and public interest. 

6. Mount Olympus National Monument, in the Olympic 
National Forest, Washington; area, 299,370 acres. This reserves 
certain lands containing objects of unusual scientific interest, 
including numerous glaciers; the region has formed a summer 
range and breeding ground for the Olympic elk, a peculiar species 
rapidly decreasing in numbers. 

7. Old Kassaan, in the Tongass, Alaska; area, 38 acres; for the 
preservation of certain aboriginal ruins of the former Haida 
Indian village, representing a distinctive type of aboriginal 
American civilization. 

8. Oregon Caves, in the Siskiyou Forest, Oregon; area, 480 
acres. These are natural caves of unusual scientific interest and 
importance. 



the National Forests 43 

9. Tonto National Monument, in the Tonto Forest, Arizona; 
area, 640 acres. Two prehistoric ruins of ancient cliff dwellings 
of ethnologic, scientific, and educational interest. 

10. Walnut Canyon, in the Coconino National Forest, Arizona; 
area, 966 acres. Prehistoric ruins of cliff dwellings of great 
educational and scientific interest. 

1 1 . Wheeler National Monument, in the Rio Grande Forest, 
Colorado; area, 300 acres. Certain volcanic formations of 
unusual interest as illustrating erratic erosion. 



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